Rothstein
J.A.:
The
issue
in
this
appeal
from
a
decision
of
The
Honourable
John
J.
Urie,
acting
as
a
Deputy
Judge
of
the
Tax
Court
of
Canada,
is
the
validity
of
a
regulation
made
under
the
Income
Tax
Act,
R.S.C.
1985
(5th
Supp.),
c.1,
limiting
the
amount
which
judges
may
deduct
from
their
income
for
income
tax
purposes
in
respect
of
registered
retirement
savings
plan
(“RRSP”)
contributions
.
Urie
D.J.
wrote
comprehensive
reasons
upholding
the
validity
of
the
regulation.
The
Chief
Justice
is
in
substantial
agreement
with
the
reasons
of
Urie,
D.J.
and
would
be
prepared
to
dismiss
the
appeal
on
that
basis
alone.
My
brother,
Décary
J.A.
and
I
also
agree
with
the
reasons
of
Urie
D.J.
and
add
only
a
few
comments
to
address
the
arguments
made
before
this
Court
on
appeal.
Prior
to
1992,
judges
were
entitled
to
deduct
from
their
income,
contributions
towards
their
annuity
under
the
Judges
Act,
R.S.C.
1985,
c.
J-1.
They
were
also
entitled
to
deduct
contributions
to
a
RRSP
up
to
$12,500.
For
1992
and
subsequent
years,
regulation
8309(2)
enacted
by
P.C.
1991-
2540,
dated
December
23,
1991,
limited
the
maximum
deductible
contribution
by
a
judge
to
a
RRSP
to
$1,000.
It
is
this
regulation
that
reduces
the
maximum
contribution
limit
to
a
RRSP
by
a
judge
that
is
challenged
by
the
Appellant.
The
first
basis
for
the
challenge
is
section
100
of
the
Constitution
Act,
1867,
(U.K.)
30
&
31
Victoria,
c.
3.
Section
100
provides:
The
Salaries,
Allowances,
and
Pensions
of
the
Judges
of
the
Superior,
District,
and
County
Courts
(except
the
Courts
of
Probate
in
Nova
Scotia
and
New
Brunswick),
and
of
the
Admiralty
Courts
in
Cases
where
the
Judges
thereof
are
for
the
Time
being
paid
by
Salary,
shall
be
fixed
and
provided
by
the
Parliament
of
Canada.
The
Appellant
argues
that
the
reduction
in
the
maximum
RRSP
contribution
limit
from
$12,500
to
$1,000
for
judges
constitutes
a
reduction
in
the
salaries,
allowances
and
pensions
of
judges
which
must
be
fixed
and
provided
by
the
Parliament
of
Canada
and
not
by
the
Governor-in-Council
by
regulation.
We
cannot
agree
that
the
opportunity
to
deduct
RRSP
contributions
from
income
for
income
tax
purposes
constitutes
the
fixing
and
providing
of
judges’
salaries,
allowances
or
pensions.
The
words
“fixed
and
provided”
indicate
that
what
is
contemplated
is
positive
remuneration
or
allowances
to
judges
and
not
a
variable
income
tax
deferral
arising
from
discretionary
individual
contributions
by
judges
to
a
voluntary
RRSP.
Such
tax
deferral
is
not
contemplated
by
the
words
of
section
100.
At
the
root
of
section
100
is
the
principle
of
judicial
independence
about
which
much
has
been
written
and
need
not
be
repeated
here.
Suffice
it
to
say
that
any
attempt
by
regulation
to
alter
the
salaries,
allowances
or
pensions
of
judges
would
be
held
to
be
ultra
vires
section
100
of
the
Constitution
Act.
In
À.
v.
Beauregard,
[1986]
2
S.C.R.
56
(S.C.C.),
Dickson
C.J.C.
stated
at
page
77:
1
want
to
qualify
what
I
have
just
said.
The
power
of
Parliament
to
fix
the
salaries
and
pensions
of
superior
court
judges
is
not
unlimited.
If
there
were
any
hint
that
a
federal
law
dealing
with
these
matters
was
enacted
for
an
improper
or
colourable
purpose,
or
if
there
was
discriminatory
treatment
of
judges
vis-d-vis
other
citizens,
then
serious
issues
relating
to
judicial
independence
and
the
law
might
well
be
held
to
be
ultra
vires
s.
100
of
the
Constitution
Act,
1867.
Regulation
3809(2)
is
not
an
attempt
to
alter
salaries,
allowances
or
pensions
of
judges.
Nor
was
there
any
improper
or
colourable
purpose
alleged
here.
Indeed,
the
purpose
was
to
bring
the
RRSP
treatment
of
judges
into
line
with
the
treatment
accorded
most,
if
not
all,
other
taxpayers
who
earned
salaries
similar
to
those
of
judges.
Regulation
8309(2)
is
not
contrary
to
section
100
of
the
Constitution
Act,
1867
and
is
not
ultra
vires
for
that
reason.
The
Appellant
then
argues
that
regulation
8309(2)
is
ultra
vires
because
the
authorizing
statutory
provision
is
too
indefinite.
Paragraph
221(1)
(a)
of
the
Income
Tax
Act
provides:
The
Governor
in
Council
may
make
regulations
(a)
prescribing
anything
that,
by
this
Act,
is
to
be
prescribed
or
is
to
be
determined
or
regulated
by
regulation;^
The
definition
of
“RRSP
deduction
limit”
in
subsection
146(1)
of
the
Income
Tax
Act
provides:
“RRSP
deduction
limit”
of
a
taxpayer
for
a
taxation
year
means
the
amount
determined
by
the
formula
A
+
B
-
C
where
A
is
the
taxpayer’s
unused
RRSP
deduction
room
at
the
end
of
the
immediately
preceding
taxation
year,
B
is
the
amount,
if
any,
by
which
the
lesser
of
the
RRSP
dollar
limit
for
the
year
and
18%
of
the
taxpayer’s
earned
income
for
the
immediately
preceding
taxation
year
exceeds
the
total
of
all
amounts
each
of
which
is
the
taxpayer’s
pension
adjustment
for
the
immediately
preceding
taxation
year
in
respect
of
an
employer,
or
a
prescribed
amount
in
respect
of
the
taxpayer
for
the
year,
and
C
is
the
taxpayer’s
net
past
service
pension
adjustment
for
the
year.
The
regulation-making
power
is
contained
in
the
concluding
words
of
B:
or
a
prescribed
amount
in
respect
of
the
taxpayer
for
the
year,
and.
It
is
clear
that
paragraph
221
(1
)(a)
authorizes
the
Governor-in-Council
to
prescribe
anything
that
is
to
be
prescribed
by
the
Income
Tax
Act
and
that
a
component
of
the
calculation
of
the
RRSP
deduction
limit
may
be
“a
prescribed
amount”.
Accordingly,
the
Governor-in-Council
has
the
authority
to
prescribe
that
component
by
regulation.
The
question
then
is
whether
the
words
“a
prescribed
amount
in
respect
of
the
taxpayer
for
the
year”
in
the
definition
of
the
“RRSP
deduction
limit”
in
subsection
146(1)
of
the
Income
Tax
Act
are,
as
the
Appellant
submits,
too
imprecise
to
authorize
regulation
8309(2).
The
Appellant’s
argument
is
that
there
is
no
limit
on
what
may
be
prescribed
or
who
may
be
affected
by
what
is
prescribed.
No
authorities
were
cited
with
respect
to
the
Income
Tax
Act
or
regulations
made
under
it
as
to
the
standard
of
precision
required.
In
any
event,
the
words
at
issue
here
must
be
read
in
context.
They
authorize
the
Gover-
nor-in-Council
to
prescribe
an
amount
that
reduces
the
maximum
RRSP
deduction
limit.
They
immediately
follow
a
reference
to
a
“taxpayer’s
pension
adjustment”
which
is
also
an
amount
that
may
be
deducted
from
the
RRSP
deduction
limit.
We
do
not
think
it
is
necessary
to
go
further.
To
suggest
that
the
regulation
making
authority
is
without
limit
and
therefore
ineffective
in
authorizing
a
regulation
such
as
8309(2)
is
to
read
it
out
of
context.
What
may
be
prescribed
is
only
an
amount
that
reduces
the
maximum
RRSP
deduction
limit.
It
must
be
relevant
to
RRSP
contributions
and
to
matters
such
as
pension
adjustments.
Other
Canadians
do
not
have
the
opportunity
to
make
contributions
to
a
pension
plan
and
also
to
an
RRSP
up
to
the
maximum
limit.
As
indicated,
regulation
8309(2)
was
intended
to
bring
the
treatment
of
judges
in
line
with
that
of
other
Canadians.
Therefore,
we
are
unable
to
accept
the
Appellant’s
contention
that
the
regulation
is
ultra
vires
on
this
ground.
The
Appellant’s
third
argument
is
a
variation
of
the
second
argument;
that
regulation
8309(2)
imposes
a
tax
and
that
the
language
in
the
definition
of
“RRSP
deduction
limit”
is
not
sufficiently
clear
to
delegate
the
power
to
impose
a
tax
on
the
Governor-in-Council.
Without
deciding
whether
the
regulation
imposes
a
tax,
for
the
reasons
that
we
have
already
given,
we
are
of
the
opinion
that
the
words
of
the
statute
are
adequate
to
support
the
regulation.
The
Appellant’s
final
argument
is
that
the
regulation
is
void
for
ambiguity.
The
appellant
says
it
may
be
read
in
two
ways:
one
-
to
replace
the
entire
B
portion
of
the
definition
of
“RRSP
deduction
limit”;
and
two
-
only
to
reflect
the
“prescribed
amount”.
On
this
ground
there
is
nothing
to
add
to
the
reasons
of
Urie
D.J.,
that
the
regulation
can
only
reflect
the
“prescribed
amount”
as
that
is
the
only
regulation
making
authority
granted
by
Parliament
under
the
definition
of
“RRSP
deduction
limit”.
There
is
no
ambiguity
and
the
regulation
is
not
void
on
this
ground.
The
appeal
will
be
dismissed.
In
accordance
with
the
agreement
of
counsel,
there
will
be
no
award
of
costs.
Appeal
dismissed.